Old problems and new dilemmas: the conundrum of environmental management reform in China

ABSTRACT

Underpinning China’s severe and continuing environmental degradation is a stubborn gap between environmental regulation and regulatory enforcement at the local level. In the past, scholars have sought explanations for the causes of this implementation gap by interviewing frontline environmental officials. Due to the fact that the self-perception data used in most of those existing studies were gathered prior to 2012, the possible factors contributing to the compromised effectiveness of local environmental enforcement from 2012 onward remain largely unknown. This empirical weakness should not be overlooked, as the prevailing institutions governing China’s local environmental management practices have been experiencing many frame-breaking transformations since 2012. Drawing on semi-structured interviews with leaders of environmental law enforcement teams in all administrative districts of Guangzhou in 2017, this paper not only summarizes pervasive elements which negatively impact the current effectiveness of environmental regulatory efforts, but also provides qualitative evidence and theoretical accounts for three enforcement dilemmas stemming from reform measures taken by the central government.     

Baseline concentrations and spatial distribution of trace metals in surface soils of Guangdong province, China

A total of 260 surface soil samples were collected to investigate the spatial distribution of trace metals in Guangdong province, one of the fast developing regions in China. The results show that the upper baseline concentrations of Cu, Pb, Zn, Cd, Ni, Cr, and Hg were 28.7, 57.6, 77.8, 0.13, 23.5, 87.0, and 0.15 mg kg(-1), respectively. Regional parent materials and pedogenesis are the primary factors influencing the concentrations of trace metals, and various anthropogenic activities are the second most important factors. The spatial distribution of trace metals is correlated to the geological characters with high concentrations of trace metals always located in regional fault areas, basins, and the Pearl River Delta alluvial plain and to the low concentrations associated with the other areas in Guangdong province.     

Cumulative environmental impacts and integrated coastal management: the case of Xiamen, China

This paper examines the assessment of cumulative environmental impacts and the implementation of integrated coastal management within the harbour of Xiamen, China, an urban region in which the coastal zone is under increasing pressure as a result of very rapid economic growth. The first stage of analysis incorporates components of a cumulative effects assessment, including (a) identification of sources of environmental impacts, notably industrial expansion, port development, shipping, waste disposal, aquaculture and coastal construction, (b) selection of a set of valued ecosystem components, focusing on circulation and siltation, water quality, sediment, the benthic community, and mangrove forests, and (c) use of a set of key indicators to examine cumulative impacts arising from the aggregate of human activities. In the second stage of analysis, the paper describes and assesses the development of an institutional framework for integrated coastal management in Xiamen, one that combines policy and planning (including legislative and enforcement mechanisms) with scientific and monitoring mechanisms (including an innovative 'marine functional zoning' system). The paper concludes that the integrated coastal management framework in Xiamen has met all relevant requirements for 'integration' as laid out in the literature, and has explicitly incorporated consideration of cumulative impacts within its management and monitoring processes.     

Self-organization theories and environmental management: The case of South Moresby,Canada

This article presents a new approach to the analysis and management of large-scale societal problems with complex ecological, economic, and social dimensions. The approach is based on the theory of self-organizing systems—complex, open, far-from-equilibrium systems with nonlinear dynamics. A brief overview and comparison of different self-organization theories (synergetics, self-organization theory, hypercycles, and autopoiesis) is presented in order to isolate the key characteristics of such systems.The approach is used to develop an analysis of the landuse controversy in the South Moresby area of the Queen Charlotte Islands, British Columbia, Canada. Critical variables are identified for each subsystem and classified by spatial and temporal scale, and discussed in terms of information content and internal/external origin. Eradication of sea otters, introduction of black-tailed deer, impacts of large-scale clearcut logging, sustainability of the coastal forest industry, and changing relations between native peoples and governments are discussed in detail to illustrate the system dynamics of the South Moresby sociobiophysical system. Finally, implications of the self-organizing sociobiophysical system view for regional analysis and management are identified.     

The targeting of rural environmental policies: an assessment of agri‐environmental schemes in the UK

The targeting of environmental policies holds the key to their effectiveness and value for money. In this paper we look specifically at the targeting of the various agri‐environmental schemes likely to be on offer to UK farmers under a reformed Common Agricultural Policy. The manner in which these schemes are targeted—at groups of farmers or areas of land—and the precision with which target groups or target land is identified will be critical in their success or failure. One approach is to target the farming systems thought most environmentally sensitive. This avoids drawing lines on a map and may allow policy makers to channel money into the hands of economically disadvantaged farmers or those vulnerable to policy change. But there is also a need for a more radical and geographically‐targeted approach if problems like soil erosion and aquifer protection—requiring drastic land use shifts within specified areas—are to be tackled effectively. We assess the scope for using existing datasets to identify land that should be targeted under an American‐style Conservation Reserve Programme in the UK.     

Governance assessment of small-scale inland fishing: The case of Lake Itezhi-Tezhi,Zambia

The small-scale fishing sector in sub-Saharan Africa is experiencing multiple challenges, mainly related to various governance issues. This study assessed the governance approach at a small-scale Lake Itezhi-Tezhi fishery, Zambia and how it relates to sustainable fishing. Data were collected through a mixed-methods approach. The governance approach was assessed by legitimacy criterion. The study revealed that there was no co-management in place but a dual governance approach—fishing community-based approach and central government-controlled approach. Both were ineffective, mainly due to lack of adherence to the legislation for local community participation in fisheries governance and an inadequate policy framework to guide the governance process. Also, the governance approaches lacked legitimacy with stakeholders. As such, unsustainable fishing practices had continued. To move towards sustainable fishing at the fishery, the study suggested the following measures: active stakeholders' collaboration and engagement with the government for prompt implementation of legislation that promotes active local fishers' participation; establishment of an appropriate fisheries policy; and ultimately, a transformation of the current governance approach into a legitimate co-management governance approach. These suggested recommendations might be useful to other African small-scale inland fisheries with similar governance challenges, and also towards meeting Sustainable Development Goal 14 on sustainable fishing.     

Strategic environmental assessment in China: motivations, politics, and effectiveness

This paper examines how strategic environmental assessment has been practiced at the national level in China through 2005 and why it has been practiced in the manner observed. Based on literature reviews and interviews carried out in 2005 and 2006, we find that bureaucratic politics between environmental and nonenvironmental ministries has limited the legislation and implementation of strategic environmental assessment to environmental assessment (EA) for a set of government plans defined in the 2003 Environmental Impact Assessment Law. Interviewees from environmental and nonenvironmental ministries and key research institutes have reported that few planning EAs have been performed at the sectoral level. Nonenvironmental ministries have either evaded the 2003 Environmental Impact Assessment Law and have not undertaken required planning EA or have organized planning EA on their own without participation by the State Environmental Protection Administration. The rising tension between the environmental and nonenvironmental ministries has limited the role of planning EA as a participatory decision-making tool. In addition to bureaucratic politics, we find that weak public participation and underemphasis on social analysis in planning EA may have further compromised the utility of planning EA.     

Forest law compliance and enforcement: the case of on-farm timber extraction in Ghana

The paper investigates law compliance in case of on-farm timber extraction in Ghana. It empirically investigates compliance with rules that (i) require timber operators to obtain prior and informed consent from the farmers, (ii) require timber operators to pay appropriate and timely compensation for crop damage caused by timber extraction and (iii) ban chainsaw lumbering. The study documents a low level of compliance in all three domains. Subsequently, the paper discusses the underlying causes for the observed low compliance. The low compliance level is attributed to a legislation, and enforcement, that provides huge financial incentives for non-compliance for both farmers and timber operators, and in the latter case both with and without legal permits. At the same time the regulation is perceived to violate their moral values. The paper underlines the interests of the political elite as decisive in shaping the current regulation and the way it is implemented on the ground. It asserts that eliciting compliance requires consideration of both the instrumental and normative perspectives; else it becomes illusive. The study thus challenges the typical response of governments in developing countries, who, supported by donor agencies, attempt to elicit compliance through enhanced law enforcement efforts. The results presented on the Ghana case suggest that such an approach is unlikely to elicit compliance.     

Planning,governance and rural futures in Australia and the USA: revisiting the case for rural regional planning

Rural regions in post-industrial countries confront significant new challenges, particularly in relation to climate, biodiversity, unconventional resource development and energy. Yet at a time when the contours of these challenges are still being sketched, and preliminary, planned interventions undertaken, the practice of rural planning finds itself at a low ebb. We examine two ‘critical cases’, one each from Australia and the USA, to explore the issues and options for capacity of rural regional planning to surmount these new challenges. Our examination indicates the urgent need for a renewed discourse on rural regional planning.     

Monitoring and enforcement for management of industrial wastes: case study for Thailand

Summary This paper seeks to set the appropriate standards for monitoring and enforcement for the management of industrial wastes and effluents in developing countries. It applies these environmental protection measures to the proposed Samutprakam Province improvement programme in Thailand.Dr Harvey F. Ludwig is a regular contributor toThe Environmentalist (see, for instance, Ludwig, 1990; Ludwig and Browder, 1992). He is Chairman of Seatec International Consulting Engineers where Sow Kim Leng is a consulting engineer. Wanida Srichai is based at the World Environment Center, Thailand Office, Bangkok, Thailand.     

Evaluation of the economic and environmental impact of converting cropland to forest: a case study in Dunhua county, China

The Sloping Land Conversion Program (also known as "Grain for Green" or the Upland Conversion Program) for converting cropland to forest is one of China's most ambitious environmental initiatives, and is one of the world's largest land-conservation programs with a budget of RMB 337 billion (over US$ 40 billion). Although environmental impacts have played a vital role in the general reasoning and argumentation for forest plantations, environmental impact analyses have often received less attention than economic analyses in the planning of plantation forestry projects. The overall goal of this paper is to evaluate the program's environmental impact considering the farmer's interests and the potential social benefits due to carbon sequestration in different scenarios based on household and field survey data in Dunhua County. Our findings are that: (1) in many cases, the program did not give adequate consideration to land productivity and environmental heterogeneity when selecting plots; (2) more than half of the reforestation plots were on flat cropland (slopes of less than 5 degrees ); (3) in five of the eight townships, net incomes on reforested land were substantially above or below previous crop incomes, raising questions about the efficiency of the allocation of compensation to farmers participating in the program; (4) the potential carbon co-benefit increased the NPV of the program by 5954-7009 RMB/ha. In conclusion, we recommend that more attention should be paid to the quality of reforestation programs rather than just their scale and note that consideration of potential carbon sequestration co-benefits enhances the benefits of cropland conversion programs.     

Regulatory resistance to environmental law in rural Australia: land clearing,murder and the media

ABSTRACT

In 2014 an Australia public servant was killed in a confrontation over illegal land clearing. The perpetrator was a land holder with a history of non-compliance with environmental regulations and had been subject to a series of prosecutions. Political suggestions that the crime was somehow justified drew attention to the growing prevalence of law breaking linked to environmental law and policy in rural Australia. This paper investigated the social construction of both the crime and the community response through a qualitative media content analysis. Utilising the “Recipe for Criminalisation” framework developed by Amnesty International, the analysis identified a contest between media discourses of legitimacy in regards to the actions taken by the perpetrator, the public servant and ultimately, the regulatory framework itself. The analysis revealed that the link between media references to illegitimate legislation, excessive regulation, over-zealous compliance and strong social norms of rural independence and economic survival created a persuasive story of justified resistance to unwelcome environmental legislation in this case. Understanding how affected communities respond to instances of policy failure, civil and criminal law breaking and environmental compliance is a crucial factor in designing more legitimate and effective governance regimes. How media narratives are constructed, by whom and in whose interests remains an important analytic question for the study of resistance to environmental law and policy around the world.     

当代中国环境治理的权利观

当代中国环境治理的权利观是指从权利的角度去考察、理解当代中国的环境治理,推进当代中国的生态文明建设事业。从这一角度来看,环境相关权利是当代中国环境治理的基本价值目标,也是重要的治理工具。所谓环境相关权利,是指环境治理有助于保障的环境权、生存权和发展权、生命权和健康权,以及在环境治理中可以运用到的知情、表达、参与、监督等权利。当代中国环境治理的权利观,在理论上符合生态文明建设的以人为本原则,符合国家治理体系和能力现代化的方针和取向,在实践上也能够揭示当代中国生态文明建设和环境治理的基本特征、精神实质和发展方向,既具有阐释性,也具有建构性。     

Questioning the local: environmental regulation,shale gas extraction,and the politics of scale

ABSTRACT

The exploration and potential extraction of shale gas – better known as fracking – has emerged as one of the most contentious dimensions to local environmental politics in the UK. Local residents and environmental activists have raised concerns about health, noise, ground water contamination, seismicity, environmental amenity, and other impacts of the industry on communities. Despite the complexities of shale gas extraction, an emphasis on the local has shaped key dimensions of the debate around the appropriate location for well pads to the relative exclusion of other issues. This paper draws on fieldwork in Lancashire, UK, to reflect on the political construction of scale in order to explore how an emphasis on “the local” can restrict political debate over shale gas to narrow concerns with land-use planning thereby obviating a fuller engagement with wider questions concerning risk, energy policy, and climate change. It is concluded that a more nuanced conception of scale is necessary for understanding how concerns with shale gas are diminished rather than strengthened through the current planning policy and regulatory regime operating in the UK.     

Application of environmental risk assessment for strategic decision-making in coastal areas: case studies in China

Environmental risk assessment (ERA) is a powerful technical tool for analyzing potential and extreme adverse environmental impacts, and has found wide application in supporting decision-making processes over the last two decades. However, to date there has been no interrelated application of ERA to support the processes of strategic decision-making (SDM), especially in coastal areas.

In this paper, we attempt to verify the feasibility of the proposed integrated ERA–SDM approach and its methodology by applying it to two case studies (in Xiamen Bay and Luoyuan Bay) of the principal coastal functional zoning (PCFZ, a kind of SDM and similar to the coastal and marine spatial planning in western). The results show that the integrated ERA–SDM approach could integrate ERA into the entire SDM process, directly support the PCFZ, and avoid or mitigate dire environmental risk that can be introduced by SDM processes.     

The effect of environmental regulation on firms' competitive performance: the case of the building & construction sector in some EU regions

There is a considerable debate on the effects of environmental regulation on competitive performance. Based on survey data, this paper analyzesthe two main research questions, derived from literature, on the links between environmental regulation and competitiveness, by focusing on firms operating in the building and construction sector, i.e.: 1) whether environmental policy stringency affects the competitive performance of firms in the building and construction sector 2) and how a specific form of environmental regulation (direct regulation, economic instruments and soft instruments) affects this performance? By applying a regression analysis, we find that a more stringent environmental regulation, measured by inspection frequency, provides a positive impulse for increasing investments in advanced technological equipment and innovative products and on business performance. Moreover, a well-designed “direct regulation” appears to be the most effective policy instrument for prompting the positive impact of environmental policies on innovation and intangible performance while economic instruments do negatively affect business performance.     

Environmental cognition of small rural towns: The case of older residents

This study reports the relation of town size and personal and demographic characteristics of 989 rural older persons to five environmental cognition dimensions: perceived neighborhood size, neighborhood ratio, awareness of town amenities, number of amenity types and tour ratio. Town size differences were found for all five dimensions: residents of smaller towns (0–500 in population) identified smaller neighborhoods but larger neighborhood ratios, listed fewer town amenities and amenity types, and produced smaller tour ratios, than did residents of larger towns (1,501–2,500 in population). Relations were also found for gender, marital status, dwelling unit type, employment status, religion, and mental health status.